In a more constructive vein Jonathan, it might help know there have been previous attempts at easement of the pedelec regulations and the problems met.
A major one is the active opposition by bodies representing the motorcycle and moped industries who fear inroads into their trade, and they have their lobbyists. It doesn't help that cycling bodies are less than favourably inclined to powered bicycles.
A related difficulty and one that the opposition exploit is the provision of motor vehicle classes that answer the needs being expressed by the pedelec easement lobby. There's the 25 kph + up to 1000 watt Low Powered Moped Class which is becoming L1e-A now, the S bikes which permit 45 kph + up to 500 watts,. and of course the full moped class, now becoming L1e-B.
A further difficulty is that we do not know the provisions required for L1e-A yet, since the L1e Type Approval law is being phased in during 2016 and 2017. For example, the draft regulation states that L1e-A does not require a mounting provision for a number plate, which has important implications.
The current identical Low Powered Moped class in the UK does have to be registered and have a number plate, but L1e-A having no number plate one assumes no registration. However, with no means of identification, will third party insurance be required? One might think not, yet we already know that a driving licence new class Q will be required. Clearly there's some conflicting issues in all this which are yet to be cleared up. And of course the conditions of usage of any class can be influenced by one's national government, as witness the current refusal of the UK government to consider the S class.
I have tried twice to get some answers on these issues from the DfT, but their replies show that they haven't even understood the question. Basically they respond only about the current EAPC pedelec regulations, which of course could be to avoid at present the issues being raised.
.